status of pmay implementation across 11 cities,...

STATUS OF PMAYIMPLEMENTATIONACROSS 11 CITIES,

JANUARY 2018

C I T Y S E L O G O

A CONSULTATION REPORT

STATUS OF PMAYIMPLEMENTATIONACROSS 11 CITIES,JANUARY 2018

A CONSULTATION REPORT

TABLE OF CONTENTSIntroduction ................................................................................................................................................................................. 1 Status of PMAY Implementation 1. Indore .......................................................................................................................................................................................... 2 2. Nagpur ...................................................................................................................................................................................... 4 3. New Delhi .............................................................................................................................................................................. 7 4. Hyderabad ............................................................................................................................................................................ 9 5. Patna .......................................................................................................................................................................................... 11 6. Visakhapatnam ......................................................................................................................................................... 13 7. Ranchi ...................................................................................................................................................................................... 15 8. Varanasi ............................................................................................................................................................................... 17 9. Jaipur .......................................................................................................................................................................................... 19 10. Ahmedabad ................................................................................................................................................................... 21 11. Navi Mumbai ............................................................................................................................................................... 23 Summary of Findings ............................................................................................................................................... 25 Memorandum to the Ministry of Housing and Urban Affairs .................... 26

Status of PMAY Implementation, 2018 0 1

INTRODUCTIONThe National Consultation on Housing for All was organised by Youth for Unityand Voluntary Action (YUVA) on 24 January 2018. YUVA has been working onchallenges of housing for the urban poor for the last 30 years and is currentlypresent in five Indian states with direct interventions in several informalsettlements. The consultation was attended by over 15 grassroots organisationsworking with communities, who presented the state of implementation of thePradhan Mantri Awas Yojana (PMAY)—Housing for All Scheme across states.The participants discussed the status of implementation of the Scheme acrossstates and critically dissected gaps in execution so far.

PMAY IMPLEMENTATIONSTATUS ACROSS 11 CITIES1. INDORE (MADHYA PRADESH)

Anand Lakhan of Deen Bandhu Samaj Sahyogpresenting the status of PMAY implementationin Indore

Through the Right to Information(RTI), it was discovered that 646informal settlements of Indorehave been identified under the PMAY.Of this, 14 informal settlements havebeen selected for resettlement in eight-storied buildings under the first phaseof PMAY. These 14 settlements areplanned to be resettled in threelocations—Bada Bangarda (for fivesettlements with 1,200 houses);Bhuri Tekri (for three settlements with800 houses); Niranjanpur (for sixsettlements with 2,900 houses).

However, the communities at large areprotesting against the resettlementplan of the State Government and areagainst the shift to transit campsgiven inadequate living conditions. Inthe second phase of the project, it isplanned that 38 communities fromdifferent parts of the city will beshifted to seven different areas identified for PMAY high-riseconstructions with around 8,200houses. 960 houses will be built underthe in-situ redevelopment component.


Not all things you've listed in thebaseline will be followed to the

letter as the project moves along.

This early, plan how you willmanage changes to the project

scope, budget, or schedule with achange management plan. This

ensures that any proposed.

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Other gaps are as follows:

GAPS IN IMPLEMENTATIONThe demand survey has beenconducted by the Indore MunicipalCorporation (IMC) and two of itspartner organisations, i.e., TARULeading Edge Pvt. Ltd. and CADMAP.The community does not trust theseactors, based on the the survey whichis believed to have left out manyfamilies. Additionally, there are toomany gaps in the flow of appropriateand exact information to the so-calledbeneficiaries from the agencies chosenfor survey. The IMC has not been ableto state the reason for evicting theresidents from settlements in the firstphase of the scheme.

Absence of community-orientedorganisations/non-profitsLack of city specific information onPMAYLack of preventive strategies toaddress the threat of evictionNeglect of human rights inundertaking project-oriented workLack of knowledge on status ofslum, Master Plan and state-specificpolicies, plans andprojectsGap in the identification ofbeneficiaries

Collection of information anddata regarding the first andsecond phase of PMAYSensitisation of 150+ communitiesand 28 non-profits on the PMAY(form, guidelines, demand, first andsecond phase slums on Master Planand proposed map, etc.)

More than 2,000 forms filled onlinefor subsidised loan for unitupgradation in PMAYFormation of Mohalla Sabhas andMohalla Samitis

EFFORTS BY DEEN BANDHU SAMAJSAHYOG

Presented by Deen Bandhu Samaj Sahyog


52%

2. NAGPUR (MAHARASHTRA)

STATUS OF PMAY IMPLEMENTATIONUnder the PMAY scheme in Nagpurcity, 50,000 houses were announced byNitin Gadkari, Union Minister for RoadTransport and Highways, Shipping andWater Resources, River Developmentand Ganga Rejuvenation and DevendraFadnavis, Chief Minister ofMaharashtra. However, no steps havebeen taken over the past two yearstowards the promises made. TheMaharashtra Government had promisedto build 19 lakh houses by 2019 (evenbefore PMAY’s target of 2020). The Nagpur Municipal Corporation,through the Slum RehabilitationAuthority, had announced the provisionfor online applications. In total, 32,000applications were submitted. However,only 18,000 applications were acceptedand approved. The Nagpur Improvement Trust (NIT)is, however, ahead in the slumimprovement planimplementation. They have evenstarted the construction of houses at afew locations. The Ministry of Housingand Urban Affairs has given approvalto NIT to build 2,374 houses.

The project will be on 23.5 acres landwith four-storied buildings, withprovision for basic services. Theproject is targeted towards the low-income groups wherein they can buythe house for INR 7,50,000 (withCentral and State Governmentsupport of INR 2,50,000). Theconstruction has begun in Vathoda(264 units), Vangji (930), and VahiTarodi (962). The Maharashtra Housing and AreaDevelopment Authority Board hasdeclared projects in Chikhal (420units), Vanji (77 units), and HajariPahad (183 units). The Nagpur MetroRegion has also committed to buildhouses in Vaddhamna (1834),Mahadulam (2016) and Beltarodi(242). It has been declared that due tolack of land availability within Nagpurcity, the project of 11,523 affordablehouses will be built in the NagpurMetro Region. The first phase of the PMAY wascompleted in March 2017, the secondphase will be completed in April 2019,and the third phase will be completedin March 2022..


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GAPS IN IMPLEMENTATION The major gaps in implementation include: In many cases, banks are approving

loans of builders whereasbeneficiaries’ applications are beingrejected. The provision for financialsupport of INR 2,50,000 forbeneficiary-led construction is notaccessible by the individualapplicants.

995Anil Wasnik of Shehar Vikas Manch presentingthe status of housing in Nagpur.

The builders are benefiting morefrom the PMAY scheme rather thanthe citizens, especially the urbanpoor. The flats constructed under thescheme are not reaching the relevantbeneficiaries but are being sold inthe commercial market.

Shehar Vikas Manch, in associationwith YUVA, is helping people fromthe community better understandtheir housing rights and the conceptof housing schemes. In October 2016,a campaign was launched in thesettlements of Nagpur where

EFFORTS BY SHEHAR VIKAS MANCHindividual applications were filled bycommunities stating their demandand their present condition (their plotsize, housing structure, economicconditions, etc). On the basis of thiscampaign, advocacy efforts weretaken up with authorities in Nagpur.


The people demanded land rights andindividual entitlements for thecommunities residing in the informalsettlements. In the capacity building Presented by Shehar Vikas Manch

sessions, people in the communitydemanded the ownership of the landthey are living on.

PEOPLE’S DEMANDS

However, in January 2017, aGovernment Resolution was adopted inNagpur extending land tenure rights toall slums in Nagpur. In 2016, the

Municipal Corporation also took theinitiative to transfer public land tothese communities.

A POSITIVE STEP


3. NEW DELHI (DELHI)STATUS OF PMAY IMPLEMENTATION

on Central Government lands.. Thenext step is to prepare a ‘Housing forAll Plan of Action’ (HFAPoA) for:

A Memorandum of Agreement (MoA)was signed by Delhi Urban ShelterImprovement Board (DUSIB) andDelhi Development Authority (DDA)for implementation of PMAY as perverticals. Five areas have beenselected under this MoU—three underDelhi Municipal Corporation (DMC),one in New Delhi Municipal Counciland one in Delhi Cantonment Board. A fresh demand survey will becompleted by September 2018 for 675slums. DUSIB will do the demandsurvey for 176 of them, which includes99 under its authority, 39 underGovernment of National CapitalTerritory of Delhi (GNCTD) and 38under three DMCs. DUSIB will alsocarry joint demand survey with DDAfor the remaining 499 slums of DDAand the settlements that are located

GAPS IN IMPLEMENTATIONThe major gaps in implementationinclude:


99 slums under DUSIB, a tentativeHFAPoA has been prepared .39 slums under GNCTD. TheHFAPoA will be prepared aftertransfer of lands from DelhiGovernment departments.38 slums of DMCs. The HFAPoAwill be planned

The next step is the formation ofvarious committees. The State LevelSanctioning and MonitoringCommittee (SLSMC) has beenformed and will be common for boththe DUSIB and DDA. StateLevel Appraisal Committee (SLAC)for DUSIB has also been formed.

There is also huge financialinadequacy and the amount offeredby the Central Government is notadequate.

The lack of landavailable/notified under the DelhiGovernment.

1Conceptualize by takinginspiration from culture,your environment, or theexisting project at hand.

2Don't forget theimportance of writingdown your ideas. Asidefrom documentation, thiswill keep you on trackand help narrow downyour options.

3Once you're done,separate them into shortterm and long term.Grouping your goalsaccordingly will beinstrumental in setting atimeline and identifyingwhat you'll be needing.

4 Stay on schedule bymonitoring the progressof each goal and keepingtrack.

EFFORTS BY DELHI GOVERNMENT/DUSIB

The Government of Delhi on 11December 2017 approved the ‘DelhiSlum and JJ Rehabilitation andRelocation Policy 2015’ inconsonance with PMAY guidelines.In the first phase, i.e., duringintervention period 2017–2020,primary activities as per HFAguidelines, and projects for fiveassembly constituencies, forrehabilitation of 10 slums having5,310 households are planned. In thesecond phase, i.e., during interventionperiod 2018-2020, projects for four

assembly constituencies, forrehabilitation of 19 slums having10,749 households are planned. In thethird phase, i.e., during interventionperiod 2018–2021, projects for threeassembly constituencies, forrehabilitation of 16 slums having 6,058households are planned. In the fourthphase, i.e., during intervention period2021–2024, projects for 11 assemblyconstituencies, for rehabilitation of 42slums having 22,841 households areplanned.

PEOPLE’S DEMANDS

Majority persons surveyeddemanded in-situ upgradation oftheir houses. They demandedpermanent possession or ownershipof the house, as a sense of security.Another demand was that theirsource of livelihood must be takencare of when the planning is done.The houses should have basicamenities like accessibility togovernment schools, publichealthcare centres, ration shops andtransport facilities nearby. Presented by Delhi Urban ShelterImprovement Board (DUSIB)



3Stay on schedule bymonitoring the progressof each goal and keepingtrack.

4. HYDERABAD (TELANGANA)STATUS OF PMAY IMPLEMENTATION

The Telangana Government hascommitted to provide two-bedroomhall kitchen (2BHK) houses to allthe homeless poor families in thestate through its 2 BHK HousingProgramme, in a phased manner.The government is scheduled toconstruct 2.7 lakh units in the State,of which one lakh is to be builtin Hyderabad. The District Minister and MLA caneach sanction 50 per cent of thebeneficiaries and will provide afinal list to the Commissioner,Greater Hyderabad MunicipalCorporation (GHMC). The eligibilitywill be verified by the Commissioner.

GHMC, and before that by the WardSabha. This scheme also involvesthe funds provided by the CentralGovernment under PMAY scheme. All the 68 urban local bodies(ULBs) in Telangana are includedunder the PMAY–HFA Missionwherein 1,86,786 dwelling unitshave been sanctioned at INR1,50,000 each. As on 20 January,2018, Central assistance of INR1,50,000/unit for 1,26,199 dwellingunits in Hyderabad as part of the 2BHK Programme launched by theState Government has been received.

GAPS IN IMPLEMENTATION

There is scepticism about thesustainability of this scheme and itspolitical willingness, with nosystematic embedment of thehousing demands. Some of theother gaps are:

The needs of the homeless andothers are not addressedPolitically-biased selection seemsto have taken placeTemporary shelters are notprovided and this is a heavyburden on the peopleLack of transparency/secretivenessin assessment of quality Incomplete coverage of slumunits Fear of delay in construction


The eligibility criteria is thepresence of the beneficiary rationcard. But most have beencancelled or are not available forthe vulnerable groups


3 Stay on schedule bymonitoring the progressof each goal and keepingtrack.

EFFORTS BY MONFORT SOCIAL INSTITUTE

Major work on the issue of PMAY isabout creating awareness amongpeople in slums about landrights and implementation of scheme.There are several issues in theimplementation of the scheme inHyderabad, like no transit houses

are provided, provision of livelihoodis missing and there’s a lapse inbeneficiary lists. Advocacy withgovernment officials and legaladvocacy in case of gaps inimplementation is another majorwork.

PEOPLE’S DEMANDS

One of the major demands of thepeople is to get a confirmed list ofbeneficiaries. For any housingscheme, according to the TelanganaGovernment, the list needs to beconfirmed by the Collector andthen by the Ward Sabha and is finallyuploaded to the website along withphotographs of thebeneficiary and this takes time.Another demand is to build well-maintained transit houses before thehouses are demolished. Presented by Monfort Social Institute- CHATRI

A crucial demand is themaintenance of the building. Thegovernment is planning to give theground floor for commercial activityand collect rent. Land Rights is another major demandby the people in Hyderabad,especially for the notified slumswhere people have patta rights overland but proper land acquisition is notdone at the time of in-situredevelopment.


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STATUS OF PMAY IMPLEMENTATION

A demand survey has been made butthe builders are not interested in thescheme because of negligible profit.There is no focus on the

5. PATNA (BIHAR)

implementation of PMAY but onlineconsultations are being done forSmart City projects.

Status of housing in Patna presented by SisterDorothy

GAPS IN IMPLEMENTATIONThe major gaps include:

Political unwillingness andlimited-awareness of governmentofficials about the Slum Policy2011 is the major gap.

The Slum Policy 2011 has beenmade null and void while anotherpolicy is in the pipeline. Thedemand survey is registering onlythe families who own land andexcluding the landless families.




EFFORTS BY ASHRAY ABHIYAN

With the authorisation of theCommissioner, more than 1,500 formsfor families have been filled andverified by the Patna Municipal

Corporation (PMC). There is alsodemand for the inclusion oflandless families as the beneficiariesof PMAY.

PEOPLE’S DEMANDS

Patna has 110 slums and Biharneeds one million houses for theeconomically weaker section (EWS).66 per cent people in the slums preferin-situ rehabilitation and are preparedto pay INR 1,110 per month, eventhough it will be difficult to pay thisamount. The Government isbargaining for INR 2,000 per month.The vagueness in the definition of‘slum’ has often led to those inauthority turning circumstances intheir favour. Presented by Ashray Abhiyan

People who live in the slums havebeen residing there for more thanfour decades and yet nothingmuch has changed for them in thearea of services on the part of thegovernment. The fear of smartcities and the demolition of slums isvery high. There is no plan on thegovernment’s agenda toenable people to handle this.



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3.25 lakh applications were receivedduring the Jawaharlal NehruNational Urban Renewal Mission(JNNURM), but only 15,600 houseswere built. More than 40,000applications were received underthe beneficiary-led construction(BLC) scheme. However, only 8,000houses are sanctioned for thosewho have land tenure documents.Even a single house has not yetbeen completed under the firstphase of PMAY. The scheme has sofar ignored the development of longpending slums who have been livingon disputed lands, and ignoredbeneficiaries who have no pattas orD-form pattas.

The Government of AndhraPradeshhas established the A.P. Townshipand InfrastructureDevelopment Corporation Limited(APTIDCO) to develop sustainabletownships and create stateinfrastructure. The government hasalso designated APTIDCO as thenodal agency for implementingthe PMAY(Urban) in the State.G.O.Ms. 296, 118 and 388 wereissued to regularise unauthorisedsettlements on government lands In-situ slum redevelopment hasbeen introduced to meet thedemand–supply gap of 14 lakhdwelling units in Urban AndhraPradesh. Construction of affordablehouses will be taken up by the stategovernment under various schemes.

6. VISAKHAPATNAM (ANDHRA PRADESH)

Srivasu Pragada of Visakhapatnampresenting the status of PMAY in his city.


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85 per cent of the built houses have gone to politically affiliatedpersons and bogus beneficiaries.The households that have noland ownership are not given access to the BLC support.All housing schemes have faileddue to lack of consultation with

PEOPLE’S DEMANDS

the community. The city public is notaware about the newspapernotification on online application forPMAY housing given by the GreaterVisakhapatnam MunicipalCorporation (GVMC). PMAY hasignored the development of informalsettlements who have been living indisputed lands.

Housing for rentalaccommodation proposals arepending with GVMC. This isespecially important for migrantsand the homeless. Slums on Central Governmentlands and private lands need alegislation to resolve land relateddisputes.Land exchange proposalsbetween the GVMC and otherdepartments for development ofslums is still pending with thegovernment.

Majority slums are located on hillslopes. They need regularisationof house sites rather thanhousing.Few villages were submerged inGVMC lands during the rains. Theyneed basic amenities, roadconnectivity to the city andtransport rather than housing.

Presented by AUTD


Some of the major gaps inimplementation include:

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A demand survey was carried outand as per the Housing for All Planof Action, a total of 55,155households were identified as theeligible beneficiaries for PMAY.


Under the PMAY verticals I, II, III andIV 19,273, 3,917, 15,581 and 16,384households were identified,respectively. The following houseshave been sanctioned under thedifferent phases:

In Jharkhand, over the last twoyears of its implementation, theprogramme has favoured theredevelopment model withoutfocusing on the needs of dwellersand with undue attention on houseconstruction. Since urban localbodies (ULBs) have beenpressurised to achieve the settarget, they have focused onimplementing the fourth vertical(beneficiary-led houseconstruction/enhancement). Under

7. RANCHI (JHARKHAND)

the scheme, in the fourth verticalthe beneficiaries under the schemeare those who have raiyati orregistered land. As a result, informalsettlement inhabitants are leftbehind. In addition to this, the DetailedProject Plans that are prepared bythe external consultants are not asper the ground realities and havenot involved the communities in itsdrafting..


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EFFORTS BY ASESSettlements in Ranchi andJamshedpur have mostly tribalpopulation or individuals migratingfrom rural areas of Bihar, Jharkhandand Eastern Uttar Pradesh, who aremostly illiterate. It is very importantto present the PMAY scheme and

PEOPLE’S DEMANDS

its guidelines in their language tothem. Therefore, ASES conductedcapacity building sessions ofcommunities in the local languageand explained the scheme to them.Several Mohalla Sabha meetings wereorganised for the same purpose.

There are two parts to the people’sdemand which need to beaddressed. First, majoritysettlements in Ranchi andJamshedpur belong to tribalpopulations who have theirtraditional way of constructinghouses. They have been demandingfor horizontal living space, single-storey houses as the ones inwhich they have been living formany years. Second is regarding theownership of land. Majority land

where settlements are locatedbelong to big industries, which isalready on government lease. Theplan of in-situ rehabilitation is veryproblematic if we consider both thecontexts. Vertical housing is notsuitable for the traditional lifestyleof tribal population, whereas itneeds to be understood how thegovernment will do in-siturehabilitation of people on the landbelonging to industries on lease.

Presented by Adarsh SevaSansthan (ASES)


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INR 1,40,000 is provided asgrant for construction of housesin rural areas. The firstinstallments have been releasedand the process is ongoing.INR 2,50,000 is provided assupport for housing construction.8,434 houses have been approvedso far though installments areyet to be paid, and the work isexpected to start soon.


The first phase of the housingproject consists of 291 flats inthe city centre. Currently freeregistrations are going on.The target for the first year is1,500 flats.Each 1 BHK flat measures 350square feet.

8. VARANASI (UTTAR PRADESH)

There is a huge demand for housesunder the PMAY scheme, but it hasnot been met. The amount to bepaid by the beneficiaries is huge,making the dwelling unitsunaffordable. The reason for the .

hign pricing of the dwelling unit isthe high land price. A lot of theareas have dilapidated buildings,but the land is legally owned by theinhabitants.

EFFORTS BY SAATH

Financial literacy, help withdocumentation, and financialassistance are provided at centres.The target is to build the capacityof a household up to the pointwhere they can legally purchase anaffordable house.


PEOPLE’S DEMAND

Land price is very high. Even a 1BHK house will cost INR 20–30lakh. There is a very high demandfor affordable housing but it is notbeing met. One pilot project hasbeen approved for approximately300 dwellings. People have startedapplying for it (this project is underPMAY or Varanasi Smart CityPlan). There is a high demand forcredit linked subsidy. But the

highest demand is for assistance forhouse construction. Most slum areasare on the outskirts; they are villagesthat have been engulfed by the city.People are legal owners of their landbut living in dilapidated housing. Theyall want assistance for houseconstruction. The first instalment hasnot yet been released for mostapplicants, even those whoseapplications have been accepted.

Presented by SAATH


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9. JAIPUR (RAJASTHAN)STATUS OF PMAY IMPLEMENTATION

Until now, Jaipur has no system ofnotifying areas as slum areas. TheState Government has targeted50,000 households by 2020 and2,00,000 by 2022 under the scheme.Affordable schemes are being builtby a few developers, but the

demand for such schemes is nothigh amongst informal dwellers. 4projects have been approved for atotal of 6,000 households by privatedevelopers over three years. Theseareas are Jagatpura, Tonk Road,Ajmer Road, and Patrakar Colony.

Mr Venugopal from SAATHpresenting the status of PMAYin Jaipur and Varanasi.




People are willing to buy theirown home, but do not have themeans or the knowledge of thepossibilities that are open tothem

Depending on areas, the sense ofentitlement varies.Political interference, i.e.,allotment of housing is based onvote bank politics..

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EFFORTS BY SAATH

SAATH has facilitated 50 homepurchases mostly ranging betweenINR 6.5–8.5 lakhs. Financialliteracy, help with documentation,and financial assistance are

provided at centres. The target is tobuild the capacity of a household upto the point where they can legallypurchase an affordable house.

PEOPLE’S DEMAND Two to three months ago, a largebasti was relocated to theoutskirts of the city. Alreadythere are reports that the flatsare being informally sold offMost people are thinking that thegovernment will give us a flatsince they will come to take ourland. There is a high demand forhousing.

Credit linked subsidy is beingavailed by many people who arebuying houses in affordableschemes. Therefore there is areluctance to improve housingconditions on their own.

Presented by SAATH


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PMAY has been combined withMukhya Mantri Grah Yojana. From2012–2017, 85,000 dwelling unitshave been built. In Gujarat, onlyfour per cent has been estimatedfor housing shortage. Till now INR2,521 crore has been spent. Sourcesfor affordable housing inAhmedabad are:

Private developers in residentialaffordable housing (RAH) zonesdesignated by ComprehensiveDevelopment Plan–2021PMAY/Gujarat Housing Boardschemes/State GovernmentSchemes.



assistance for buying houses. Theyhave no provision for any otherkind of housing. There has beenslow and inadequate servicedelivery. Creating a sense ofentitlement reduces personalresponsibility and sense ofownership of the allotted house. Theprovision of supplementaryservices such as education andhealthcare remain weak. There is nointegrated approach to maintain theallotted houses, resulting in thesehouses being rented out.

Private developers in RAH zonesdesignated by CDP–2021 areonly present in certain areas andit is not always convenient forpeople all over the city. Theinitial enthusiasm has dwindledas people await allotment in aPMAY scheme near their currentplace of livingPMAY/GHB schemes/StateGovernment Schemes only haveprovision for owned units or

10. AHMEDABAD (GUJARAT)



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EFFORTS BY SAATH

A revised approach is required. Thisincludes:

Griha Pravesh is a project ofSAATH that focuses on assistingpeople wanting to buy homes withthe process of purchasing a legalhome. Most of our clients are slum

dwellers or informal sector dwellers.We help them get finance and linkthem with builders buildingaffordable housing..

PEOPLE’S DEMAND

Resolve legal issues with respectto upgradeable housing throughmeasures such as Urban LandCeiling (ULC) validation inGujarat.

Enable residents to upgrade saidhousing through funds via PMAYlike schemes, loan subsidies, etc.as is happening in the case ofVaranasi.Build the remainder, which is thereal ‘shortage’, but in anenvironmentally and sociallysustainable manner

Presented by SAATH


3A demand survey has beenconducted by Maharashtra Housingand Area Development Authority(MHADA) across MumbaiMetropolitan Region (MMR). Intotal, 23 lakh applications havebeen submitted. However, only two

11. NAVI MUMBAI (MAHARASHTRA)


lakh houses have been sanctionedacross the MMR. This is under 60projects that have been sanctioned.CIDCO will build 15,000 houses inNavi Mumbai under PMAY(U).Reports indicate that 8,000 arebuilt.


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EFFORTS BY YUVA

GAPS IN IMPLEMENTATIONOnly vertical III, i.e., AffordableHousing in Partnership is beingimplemented under PMAY whilethe other verticals are being ignored.

Several public hearings on thescheme have been arranged incommunities by YUVA. A lettercampaign was run, where more than3,000 letters addressing thedemand of housing were written tothe Prime Minister. YUVA is

organising capacity buildingsessions for the community on thePMAY guidelines and housing crisis,and attempting to betterunderstand the community’s view ofhousing.

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The people’s major demandsinclude:

Survey of informal settlementstowards building a housing policyand building people’sorganisations Intervention in DevelopmentPlan (DP) revision towardssecuring land reservation forinformal settlements

PEOPLE’S DEMAND

Presented by Youth for Unity andVoluntary Action

Ownership of land viacommunity land trust and malikipatta provisionsHousing alternatives with rentalhousing for seasonal andtemporary workers, anddormitories/hostels for singlewomen/menEnabling legal entitlements toaccess housing


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SUMMARY OF FINDINGSThe major deductions from the city-wise presentations are: 1. The scheme lacks hugely inmeeting its targets. With thecurrent pace of only 32 lakhhousing projects being approvedand only 3.61 lakh houses builtnationally so far, PMAY will takeanother 100 years to reach itstarget. 2. There is lack of acknowledgmentregarding housing self-constructionand the communities across thecountry are demanding financialsupport to develop housing throughself-construction. However, the keyissue in the scheme that makesbeneficiary-led construction’inaccessible is the lack of landtitles.

3. The community’s inclusion in anappropriate manner is not possiblewithout the accountability of theconsultancies that are responsiblefor surveys and planning of thesettlements. 4. The 2-bedroom housing schemedeveloped by the Telanganagovernment is a good examplewhich not only demonstratespolitical will, but also anunderstanding of contextualaffordability and adequacy.However, the aspect ofsustainability of this project mustbe studied for better operationalmechanisms. The consultation concluded withthe drafting of a Civil SocietyDeclaration for affordable andinclusive housing policies andschemes through PMAY.


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Civil Society suggestions to thePradhan Mantri Awas Yojana(Urban) Guidelines 26 March 2018 A National Consultation and CivilSociety Review of Housing for Allwith a focus on the Pradhan MantriAwas Yojana (PMAY)–Urbanmission was organised by Youth forUnity and Voluntary Action(YUVA) on 24 January 2018. The .

MEMORANDUM TO THEMINISTRY OF HOUSING ANDURBAN AFFAIRS (MOHUA)

consultation was attended bygrassroots organisations andvarious civil society members. Thestatus of implementation of thePMAY with a focus on 11 majorcities was discussed. These citiesinclude, Indore, Navi Mumbai,Nagpur, Delhi, Hyderabad, Patna,Visakhapatnam, Ranchi, Varanasi,Jaipur and Ahmedabad. Academicians and representativesof governments supported the on-going deliberation through criticaldissection of the gaps in theimplementation of the housingscheme.

(Clockwise from top) Draftingcommittee of the Memorandumconsisting of Mr Raju Bhise, MrAravind Unni and Mr Kirti Shah, MrSandeep Khare and Mr BharatKantari. In Panel 2 and Mr SamSolomon presenting technical issueswith Housing for all Mission.


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The aim of the consultation was toaddress current challenges andprepare a plan of action asrecommendations to ensureinclusive, participatory and timelyimplementation of the mission..

Recommendations by civil societymembers towards measures forhousing the urban poor under thePMAY(U) have been collated below

1. ENCOURAGE AND PROMOTE PROVISIONOF LAND TENURE RIGHTS AMONG STATEGOVERNMENTSIn Nagpur, select cities in Odisha,Guwahati and Vishakhapatnam thestate government has provided/is inthe process of providing land tenurerights or pattas to individuals livingin slums. In these cities, in situupgradation and beneficiary-ledconstruction should be prioritised.This allows for families toaccommodate natural growthwithout further densification of anexisting household. Globally, .

ownership of land has been linkedto higher human developmentindices and better quality of life forthe poor. Within the PMAY(U)guidelines, state governmentsshould be encouraged to providepattas to those living in slumsettlements. Guidelines should alsomandate revision of state specificcut-off dates that prevent greaterinclusion into the Housing For Allvision..

2. STRENGTHEN BENEFICIARY-LEDCONSTRUCTION WITH UPGRADATION OFOVERALL SETTLEMENT

There must be anacknowledgement of existinginformal settlements as self-constructed affordable housingstock. There is, however, supportrequired to ensure adequacy of the

overall settlement in the form oftenure security, service provisionand resilience building. Householdsacross the country are demandingsupport to develop housing throughself-construction and to ensure .


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Many cities like Ranchi, Patna,Visakhapatnam and Indore have ahousing stock that has been createdby earlier housing schemes such asBasic Services for Urban Poor(BSUP) and Rajiv Awas Yojana(RAY). These housing units are notfit for human habitation, yet peopleare being forcefully rehabilitatedunder the PMAY(U). These unitsare in many instances as far as 20km away from the originalresidence. Even if the scope ofPMAY does not mention evictions,there is emphasis in two of itsverticals—in-site slum rehabilitation(ISSR) and affordable housing inpartnership (AHP)—on thetenability of a settlement. The definition of tenability,however, varies across differentacts and policies and isinadequately formulated, making itimpossible to quantify. This leaves alot of room for subjectiveinterpretation, leading to forcedevictions and compulsoryrehabilitation.

overall upgradation of thesettlement. A fifth vertical for in-situ upgradation should be detailedoutlining of beneficiary-ledconstruction (BLC) and provision ofbasic services such as water supply,

sanitation, sewage, various socialamenities etc. Along with this, BLCshould be allowed for individualhouseholds. Currently, the schemeguidelines prohibit individualapplications for BLC..

3. DEVELOP PARAMETERS FOR ADEQUATEHOUSING PROVIDED UNDER PMAY

To prevent similar occurrences inthe future, the scheme guidelinesmust include strict directives formethod and justification of need forchosen mode of rehabilitation withprovision for consent clause andcomplaint redressal regarding thesame. Further, if said rehabilitation isfound necessary and consented to,they must adhere to certainparameters for housingconstruction within the guidelines.These parameters must focus onadequate housing as defined by theOffice of the High Commission forHuman Rights (OHCHR). Thisincludes aspects of security oftenure, habitability, availability ofservices, materials, facilities andinfrastructure, accessibility, locationand cultural adequacy. Affordabilitythat is promoted under thePMAY(U) is only one aspect ofadequate housing..


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In cities like Ranchi, Patna, Indore,Lucknow and Ahmedabad thevertical that can be availed ofthrough the PMAY(U) is enforcedon people without consent. Peopleneed to have the right to choosewhich of the four verticals is suitedto their needs. Tenure being aprerequisite for the two verticals—BLC and credit-linked subsidyscheme (CLSS)—which are demanddriven, they are seldom applicablefor a majority of the urban poorowing to their residence insettlements recognised as ‘slums’which are often deemed untenablebased on subjective and varyinglyquantified indicators. Differenttypes of tenure should be exploredbased on the context and prioritymust be given to enable majority oftargeted beneficiaries to availdemand side provisions of BLC andCLSS. Citing untenability of a settlementon an adhoc basis, manysettlements irrespective of previoustenurial provisions are beingrehabilitated through the supplyside provisions, ISSR and AHP,where location, typology, size,community and services of thehousing units are predetermined

4. INCORPORATE PARTICIPATION OFPEOPLE IN HOUSING PROVISION THROUGHPMAY

with very little or no participationfrom the targeted group. Design and size of housing mustevolve through a participatorymethod and must be incorporatedwithin the guidelines. Observationsfrom occupied rehabilitation siteswith similar typology as thatproposed under PMAY verticals indifferent cities (ISSR and AHPspecifically), show that due toinsufficient space inside thedwelling unit, many activities spillout into the common areas, whichare not designed to accommodatethese activities. That the proposedmodel of housing does not drawfrom the previous livingenvironment of the beneficiaries isalso starkly clear in the wide gapsof maintenance observed onoccupied sites, especially ofcommon services, including defunctelevators in multi-storey buildings,empty and ill-maintained parkinglots and basic service infrastructurein perpetual repair..


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Different models to address avariety of housing needs should beexplored incorporated in theHousing for All mission. Temporaryshelters, hostels, rental housing,social housing, community land..

If average size of a dwelling unitunder the mission remains low, thepopulation density observed inthese newer neighbourhoods willincrease. The public-privatepartnership (PPP) models not onlycongest the existing settlement intoa small percentage of the landpreviously available, they also addmore activities to the same landparcel in the name of incentives.

5. SIZE OF THE DWELLING UNIT SHOULD BEIN PROPORTION TO POPULATION DENSITY

This will result in reduced efficientprovision of basic services and theviability of public transit. Modelsshould encourage various sizeddwelling units and configurations ofspace within and between buildingsthat will retain larger households.The size of the dwelling unit shouldbe in proportion to the populationdensity to ensure better quality oflife.

6. MULTIPLE HOUSING OPTIONS SHOULDBE PROVIDED UNDER THE PMAY

trusts are a few examples thatshould be incorporated into theguidelines to meet multiple needs ofIndia’s growing population in smalland big cities..

7. BUILD GREATER SYNCHRONISATIONBETWEEN MOHUA SCHEMES AND OTHERCENTRAL MINISTRIES

In-spite of scheme guidelinesemphasising on convergencerepeatedly, there are wide gaps inits implementation to an extent thatone scheme defeats the goal of the .

others. For example, cities whereSwachh Bharat Mission (SBM) andAtal Mission for Rejuvenation andUrban Transformation (AMRUT)are not limited by the tenability .


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While the Ministry has amanagement information system(MIS) to track achievement oftargets of housing construction andthe PMAY Capacity BuildingGuidelines outlines Third PartyQuality Monitoring Assessment(TPQMA) with the need for SocialAudit, the implementation of thesame is found wanting. It is with asense of urgency that thegovernment must ensuremonitoring qualitative aspects ofhousing provision. Qualitativeindicators of housing should includematerial quality assessment,adequacy, accessibility etc. .

clause have upgraded basic servicesin informal settlements. PMAY’stenability clause marks the samesettlements for rehabilitation and isdemolishing the infrastructure builtby the former schemes along withthe houses. This has been seen inIndore and Navi Mumbai. Thedefinition and scope of tenabilityshould be reimagined by PMAY,especially when schemes like SBMand AMRUT are primarily designedaround the premise of improving

living condition, which is the basisfor establishing tenability. True and complete convergence willbe realised when there is a strongpush for implementation of thePMAY(U) guideline (point 10) thatcalls for coordination between stategovernments and centralauthorities—railways, defence,forests and ports—to use theirresources and reach the HousingFor All goal together.

8. MONITOR QUALITATIVE ASPECTS OFNEW HOUSING CONSTRUCTION, NOT JUSTNUMBER OF UNITS CONSTRUCTED

Performance of the scheme shouldbe evaluated based on theseindicators to monitor and ensuresuccess of the scheme. The current data available on thescheme is limited to number ofconstructed and under-constructionprojects in different states.However, there is need for real-timedata on location, vertical, targetedpopulation and funding, which willenable transparency andaccountability. It will also ensurecooperation and participation fromthe wider civil society.


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As per the scope of PMAY(U), thosewho have a pucca house in any partof India are not eligible for thescheme. This is contradictory fortwo main reasons. Firstly, manyslums that have been secured byState Government cutoff date havea high number of pucca houses.Secondly, many who migrate to .

9. SCOPE OF PMAY(U) SHOULD TO BEAMENDED

Provision of housing through thePMAY(U), especially in large cities,is through public privatepartnerships (PPPs). This method ofhousing provision is seen as a profitmaking exercise that is benefittingprivate developers more than theurban poor. Land as a resourceshould go back to people forhousing to be provided to all. Theclear assertion of the scheme, asmentioned repeatedly under theISSR vertical, is that the potentialof land under ‘slums’ is locked and

urban areas may have pucca housesin their place of origin. The poormigrate to avail livelihoodopportunities in cities, not becausethey do not have houses in ruralareas. This clause within the PMAYguidelines is in fundamentalopposition to the right to work andlive in cities. .

10. NEED TO SHIFT FROM ‘MARKET DRIVENHOUSING PROVISION’ TO ‘HOUSING AS ANON-PROFIT MAKING EXERCISE’ FORHOUSING THE URBAN POOR

that it aims to unlock this throughprivate participation. This not onlyencourages deflection of focus fromservice provision tocommodification of housing, it alsoasserts a problematic view that athird-party private investment ismore desirable than the investmentof ‘slum dwellers’ and other targetedurban poor themselves, were they tobe granted adequate tenurial rights.It must be strongly asserted thatland as a resource will first ensuresecurity and allow for demand-


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driven incremental expansion andsecond, it will be a potential tool toenable economic mobility, both ofwhich will eventually address thepressing question of future need ofaffordable housing stock. It isessential here to compare theimplementation, operational and .

maintenance costs of newly builtrehabilitation units (multi-storeyed)and in-situ upgradation. Thisexercise would demonstrate themanifold cost-effectiveness of in-situ upgradation in the place ofnewly built projects.


Youth for Unity and Voluntary Action (YUVA) is a non-profitdevelopment organisation committed to enabling vulnerable groups

to access their rights. YUVA encourages the formation of people’scollectives that engage in the discourse on development, thereby

ensuring self-determined and sustained collective action incommunities. This work is complemented with advocacy and policy

recommendations. Founded in Mumbai in 1984, currently YUVAoperates in the states of Maharashtra, Madhya Pradesh, Odisha,

Assam and New Delhi.

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